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PROJECT PERFORMANCE REVIEW TECHNICAL ASSISTANCE FOR SOCIOECONOMIC DEVELOPMENT THROUGH DEMINING AND INCREASING BORDER SURVEILLANCE CAPACITY AT THE EASTERN BORDERS OF TURKEY December 12th 2017 CONTENTS EXECUTIVE SUMMARY ................................................................................................................. 2 INTRODUCTION ........................................................................................................................... 3 1. MINE ACTION IN TURKEY .......................................................................................................... 5 Landmines and Border Management ................................................................................................. 5 International Engagement in Mine Action .......................................................................................... 7 Land Mine Casualties in Turkey: ......................................................................................................... 9 2. STRATEGIC POSITIONING, CONCEPT AND DESIGN.................................................................... 10 Project Planning ................................................................................................................................ 11 Pre- Tender Planning......................................................................................................................... 12 Monitoring, Evaluation and Risk Management ................................................................................ 13 The Clearance Contract ..................................................................................................................... 14 The Clearance Tender ....................................................................................................................... 14 3. IMPLEMENTATION ................................................................................................................. 16 The Establishment of TURMAC ......................................................................................................... 16 Mine Clearance ................................................................................................................................. 17 Phase One ......................................................................................................................................... 18 Phase Two ......................................................................................................................................... 18 Contracting Changes ......................................................................................................................... 20 Reviewing the Contracting Model .................................................................................................... 20 The Operational Demining Process ................................................................................................... 21 4. CONCLUSIONS AND RECOMMENDATIONS .............................................................................. 23 Project Assessment ........................................................................................................................... 23 Conclusions and Recommended Actions .......................................................................................... 24 Strategic Positioning, Concept and Design ....................................................................................... 24 Implementation ................................................................................................................................ 25 Partnership and Coordination........................................................................................................... 26 Monitoring, Evaluation and Risk Management ................................................................................ 27 Rights Based Approach and Gender Mainstreaming ........................................................................ 27 ANNEX ONE ....................................................................................................................................... 29 ANNEX TWO ...................................................................................................................................... 37 ANNEX THREE .................................................................................................................................... 42 ANNEX FOUR ..................................................................................................................................... 43 Page | 1 EXECUTIVE SUMMARY The Government of Turkey has been enhancing its border surveillance capability in response to the challenges presented by mass migration, terrorism, human trafficking and smuggling. This is a national priority and an essential step in Turkey’s accession to the European Union (EU). The United Nations Development Programme (UNDP) has been supporting the Government by developing and implementing a project entitled “Technical Assistance for Socioeconomic Development through Demining and Increasing the Border Surveillance Capacity at the Eastern Borders of Turkey” in partnership with the Government and the EU. The project was designed to contribute to the prevention of illegal migration and cross-border crime on Turkey’s eastern borders by clearing the border regions of mines and providing an effective and modern border surveillance system. The eastern border areas in Turkey are a military zone and civilians are not permitted to access the area. The area is expected to remain a military zone for the foreseeable future. The project experienced challenges during the preparatory stages when generous funding was committed to support the clearance of 225 minefields in 24 months. This decision was unfortunately based on insufficient surveying of the minefields and in response a Request for Proposals (RFP) was put out to tender and the successful bid came from a clearance contractor who nominated an unrealistically low cost. A quality management firm was also engaged to ensure that the contract was implemented in an efficient and effective manner and UNDP engaged a small team led by an international Chief Technical Advisor to manage the project. This was the first humanitarian mine action project that was implemented in Turkey and it quickly experienced some major challenges. The essential governance elements of a national mine action programme such as a National Mine Action Authority and Mine Action Centre were required. The Government, with support from UNDP, established the Turkish Mine Action Centre (TURMAC) although an authority is yet to be established. The establishment of the TURMAC led to the development of core national standards, the clearance contractors being accredited, and legislation being approved to facilitate the transport, storage and use of explosives and other essential activities. After a rocky start the project successfully cleared 25,000 mines and 11 minefields in its first full year of operations in 2017 which has established a sound foundation for future activities. UNDP and its partners can feel justifiably optimistic ahead of the 2018 demining season and this review is recommending a number of actions to make the programme more efficient and effective. Many of these actions will need to occur in 2019 when the current clearance contract is concluded although planning for 2019 should begin in early 2018. The actions include focusing on the development of an integrated work plan for 2018 with the mine action assets providing a targeted service to the broader border management project. This shift will involve an enhanced coordination and planning role for the TURMAC and link UNDP’s capacity development activities more closely with demining operations. TURMAC has indicated that it will be moving its Operations/Quality Management and Information Management capability to the minefields in 2018. This will fast track the capacity development of TURMAC staff as they will work alongside the quality management contractor and UNDP Technical Staff. As a part of this shift it is critical that these TURMAC staff are empowered to make operational decisions in the field. These shifts will require UNDP and TURMAC to enhance the results based planning frameworks in the mine action programme to more accurately assess outcomes. This is an exciting moment for mine action in Turkey as a united group of national and international partners build the capability to eventually rid Turkey of landmines. Page | 2 INTRODUCTION Background The Government of Turkey in the course of progress towards accession to the European Union (EU) and in response to the obligations of the EU and its Member States is actively following a National Programme for the Adoption of the Acquis. The objective of the process to implement the relevant amendments to existing legislation and to strengthen those institutions responsible for the enforcement or implementation of the new procedures. This process of ‘Institution Building and Reform’ is crucial to ensuring that Turkey successfully transitions to the standards, norms, expectations and obligations of EU Member States. Border management is included under the chapter of Freedom, Justice and Security of the Institution Building and Reform Process. This is one of the highest priorities of this process. When Turkey joins the EU, Turkey’s eastern borders will be Europe’s borders. Management of the eastern borders is complicated due to the geographical
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